Reducing Low-Income Country Debt Risks
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Briefing note Reducing low-income country debt risks The role of local currency-denominated loans from international institutions Jesse Griffiths, Ugo Panizza and Filippo Taddei May 2020 • Low-income countries, already facing significant challenges, now face a dramatic worsening of debt sustainability and the possibility of a widespread debt crisis because of the Covid-19 pandemic. Key messages • These countries are sensitive to external shocks partly because a large proportion of their debt is held in foreign currency and widespread devaluation of their own currencies has made their debt situation much worse. • The ability to borrow long term, internationally, in local currency could significantly reduce borrowing risks for low-income countries, but they would need help from multilateral institutions to do so. • This briefing outlines four options as to how low-income country debt risks could be reduced in a way that overcomes challenges, including the institutional rules of multilaterals, political economy problems and issues of moral hazard: 1. Multilaterals accept the currency risk themselves. 2. Multilaterals hedge lending through another institution. 3. Multilaterals borrow from local capital markets and on-lend. 4. Multilaterals borrow abroad and on-lend in local currency. • These options should be developed to generate workable proposals for discussion with low-income countries, with a view to identifying how greater availability of local-currency funding could help them reduce debt risks. Purpose of this briefing will limit governments’ ability to cover existing expenditure and refinance their maturing debt. This briefing contributes to the discussion The large capital outflows, currency depreciation, on how to reduce debt risks for low-income fall in commodity prices and economic slump developing countries – an important issue in associated with the Covid-19 crisis are likely to recent years and now a policy priority as the lead to numerous debt crises. These problems are Covid-19 crisis escalates debt problems. It aims not due to policy failures in the developing world to identify and assess options for increasing the but to external factors, including skyrocketing supply of local currency-denominated lending by financing needs in advanced economies, elevated multilateral institutions to sovereign governments risk aversion among investors and the global in low-income countries, thus shielding them economic downturn. The severity of the crisis from risks associated with currency depreciation. in emerging and low-income countries has It is intended to promote debate and reinvigorate led to calls for widespread debt suspension or the consideration of serious policy proposals in cancellation, and the International Monetary this neglected but important area at a time when Fund (IMF) and G20 group of industrialised innovative ways of reducing debt risks for low- nations have taken steps in this direction. income countries are of paramount importance. From when the crisis exploded to 9 April 2020, more than 90 countries had requested or Background expressed interest in IMF support, around 60% of them low-income countries (IMF, 2020b). Public external debt in low-income countries Capital outflows have led to currency has been rising since 2012. The median public depreciations, with significant effects on low- debt of low-income economies1 rose to 49% income countries where external debt makes up of gross domestic product (GDP) in 2019 from a major share of total debt. According to the 33% in 2013 (IMF, 2020a). The composition Institute for International Finance, between mid- of low-income country public debt has changed February and the end of March 2020, emerging dramatically in recent years, with declining economies registered record portfolio outflows concessionality and increased borrowing from totalling more than $100 billion (IMF, 2020c). private, non-traditional official and domestic To put this in context, total portfolio outflows in lenders. While the share of low-income country the three months after the 2008 global financial debt owed to private creditors had more than crisis were about $20 billion. The latest outflows doubled to nearly 6% of GDP as of 2016, have been associated with large currency the share of debt owed to bilateral creditor depreciations, which have averaged 15% in a members of the Paris Club was just over 2% of large sample of developing countries, but close to GDP. This compared with nearly 14% of GDP 30% in large emerging economies such as Brazil, owed to non-Paris Club creditors, with China Mexico, Russia and South Africa.2 Such big accounting for just over 4% of GDP. Domestic depreciations will have negative implications borrowing has been increasing, reaching more for debt sustainability in countries with large than 15% of GDP as of 2016, a level similar foreign-currency debt. Developing countries, to that borrowed from external multilateral including low-income countries, often have a creditors (IMF, 2018: 51). high proportion of debt denominated in external The Covid-19 crisis will have a massive currency, typically US dollars. In 2017, for effect on debt sustainability in developing example, an average 74% of low-income country countries. Higher healthcare costs, lower tax debt was denominated in a foreign currency and export revenues and frozen debt markets (Panizza and Taddei, 2020: 9). This is still the 1 There are several definitions of what constitutes a ‘low-income country’. We have used the IMF definition of ‘low-income economy’, as it is the broadest, encompassing 76 countries. All IMF citations refer to this grouping (IMF, 2020a: 46). 2 Authors’ calculations based on data from the Bank for International Settlements. 2 case, even though domestic debt levels have risen more than 15% of government revenues to debt significantly in many low-income countries. servicing in 2017, up from 21 countries in 2014 Partly as a result of this external currency- (UNCTAD, 2018: 7). denominated debt, low-income country debt As a result of increasing debt levels and the levels are particularly sensitive to external rising cost of debt, the number of low-income shocks. Debt sustainability analyses confirm countries facing serious debt problems was that the majority of low-income countries are already climbing rapidly and is likely to jump vulnerable to exchange-rate changes (IMF, as a result of the Covid-19 crisis. The IMF and 2015) and many are vulnerable to changes in World Bank debt sustainability exercise classified commodity prices. We saw sharp increases in 44% of low-income countries as being at high fiscal deficits, for example, following the 2015 risk of or already in debt distress – a number commodity-price shock (IMF, 2018: 39). The that has more than doubled since 2013 (IMF, rise of foreign participation in domestic capital 2020a: 14). Low-income countries are now markets means that the risks associated with more integrated into the global economy than changes in investor sentiment have grown before and, consequently, more exposed to (Cornford, 2018). Sudden capital outflows market risks because of their greater reliance caused by external investors’ withdrawal from on private borrowing (IMF, 2015). Foreign- domestic debt markets can lead to both sudden currency bonds are also more likely to involve changes in exchange rates and funding shortfalls bullet payments that lead to spikes in financing for countries relying on those markets (IMF, needs (IMF, 2015), increasing risks and, 2018: 50). The Covid-19 economic crisis is potentially, refinancing costs. These figures are on a scale not seen before, so the extent of the based on debt sustainability analyses conducted external shock to low-income countries will be before the Covid-19 crisis. The number of significant over the course of 2020 and beyond. low-income countries in debt distress or at The changing nature of public debt meant risk of debt distress is, therefore, likely to that it had already become more expensive and increase dramatically. volatile in low-income countries before the crisis. This was primarily due to an increase in debt Local-currency borrowing: a key tool owed to the private sector and an increase in for low-income countries domestic debt as a share of the total. Private debt tends to be significantly more expensive than The ability to borrow long term, internationally, alternative public lending from international in local currency could significantly reduce bilateral or multilateral sources and it is also borrowing risks for low-income countries and more pro-cyclical (Galindo and Panizza, 2018). help to reduce the likelihood of debt crises. Like Mark Twain’s proverbial banker, private As noted, the large currency depreciations that financiers stand ready to lend you an umbrella countries are experiencing have a dramatic when the sun is shining but want it back the impact on debt sustainability, largely because minute it starts to rain. As a result, debt-servicing they owe a considerable proportion of their debt costs are absorbing a growing share of public in foreign currencies. A recent study found that expenditure (IMF, 2018: 50), with yields spiking debt-to-GDP ratios tend to grow more rapidly in bad times. One analysis using IMF and World when countries that have a high share of foreign- Bank data suggests that the 124 developing currency debt undergo currency depreciation countries for which data is available spent a (Panizza and Taddei, 2020).3 Another advantage mean average 12.2% of government revenue on of long-term international borrowing in local debt servicing in 2018, up from 6.6% in 2010 currency is that it could provide an alternative to (Jubilee Debt Campaign, 2019). Another analysis borrowing from domestic debt markets. This is finds that 29 developing countries devoted especially useful in countries where domestic 3 Panizza and Taddei (2020) do not focus on maturity, but countries need to be careful not to trade currency mismatches for maturity mismatches. 3 sovereign borrowing levels are high or domestic the other side (borrowing), and vice versa.